Public sector comparators for UK PFI roads: inside the black box

Abstract

A public sector comparator (PSC) represents the hypothetical, risk-adjusted cost of a project—such as a road scheme—when that project is financed, owned and implemented by government. A PSC is commonly used in public procurement decision-making as a yardstick against which private investment proposals are evaluated. Using original material released by the UK Highways Agency for the first time, the author recreated the PSCs used for the evaluation of the first eight road projects to be promoted under the UK’s private finance initiative (PFI). Alternative assumptions regarding project risks were modelled using different levels of optimism-bias uplift, and the impact on value-for-money of using different discount rates was evaluated. Public sector comparators have attracted considerable attention in the literature as they retain a pivotal role in the policy decision to use—or not use—private finance. However the fact that their detail is usually kept confidential by public sector procuring agencies—because of commercial sensitivities—has restricted informed discussion and open debate. Now the architecture of these comparators is laid bare for critical examination. It has generally been assumed that any reduction in the discount rate used in PSC calculations will favour conventional procurement over PFI-type contracting arrangements. The research reported in this paper demonstrates that the relationship between the discount rate and the attractiveness of using private finance is not as simple as has been assumed, and the outcome in terms of value-for-money is not as predictable as has previously been reported.